INTERNATIONAL PERSPECTIVES Half-Bhutan The Evolution and Effectiveness of Protected Areas in a Country Recognizing Nature Needs Half BY SONAM WANGCHUK, DECHEN LHAM, NIGEL DUDLEY, and SUE STOLTON hen E. O. Wilson called for half the world to be left in a natural stateW (Wilson 2016), there was widespread disbelief that such a thing was possible. But while theore- ticians argue about the details, one country has quietly exceeded the Sonam Wangchuk Dechen Lham Nigel Dudley Sue Stolton target: Bhutan has set aside 51.44% of its total land area as permanent protected areas. This the country are explored. Important species include the red article discusses Bhutan’s conservation strategy, describes panda (Ailurus fulgens fulgens), blue sheep (Pseudois nayaur), a recent assessment of the effectiveness of the country’s Tibetan wolf (Canis lupus chanco), takin (Budorcas taxicolor protected area system, and looks at what lessons the rest whitei), Asian elephant (Elephas maximus), gaur (Bos gaurus), of the world can and cannot draw from the actions of this Asiatic golden cat (Catopuma temminckii), Himalayan serow tiny Himalayan country. (Capricornis sumatraensis), musk deer (Moschus chrysogaster), Bhutan is a small, landlocked Buddhist country, clouded leopard (Neofelis nebulosa), tiger (Panthera tigris lying between India and China, in the Eastern Himalayas tigris), and snow leopard (P. uncia) (Ministry of Agriculture (Department of Forest and Park Services 2016). The country and Forests 2014). The National Tiger Survey of 2014–2015 is blessed with a range of ecosystems, ranging from lowland recorded 103 tigers in Bhutan (DoFPS 2015), and 96 snow tropical forests to some of the highest mountain ecosystems leopards were recorded from the nationwide snow leopard in the world. Around three-quarters of the country is forested camera trap survey of 2015–2016 (DoFPS 2016). Bhutan is (Gilani et al. 2014), and the government is committed the first among the 12 snow leopard range countries to have to maintain forest cover of at least 60%. This is further completed a nationwide snow leopard survey. enshrined in the Constitution of Bhutan, and the country The protected area system consists of five national parks, also pledged to remain carbon neutral in perpetuity at the four wildlife sanctuaries, one strict nature reserve, and one Paris Climate Declaration. There is a rich biodiversity with botanical park as well as eight biological corridors connecting more than 200 mammal species, including 27 globally all the protected areas (Figure 1). Conservation efforts are threatened species; more than 760 birds, including 60% centered throughout these protected areas, and further, of the world population of the critically endangered white- Bhutan emphasizes transboundary conservation. bellied heron (Ardea insignis) (Ministry of Agriculture and Forests 2014); and a huge array of flowering plants, including Encouraging Protected Areas many endemic species. Baseline survey of species is still Bhutan has a number of unique features that help lay the ongoing, and new species are recorded as new areas within groundwork for conservation success. The human population JUNE 2017 • VolUmE 23, NUmbEr 1 International Journal of Wilderness 43 Figure 1 – Map of Bhutan’s protected areas Figure 2 – Jigme Dorji National Park is less than 800,000 and only 8% of the one key reason behind the conservation aside areas for their intrinsic values area is suitable for agriculture, meaning success of Bhutan. Agriculture is the thus pre-dates modern protected area that the large majority of people dominant livelihood practice, and most practice and is deeply rooted within (an estimated 87%) are dependent people depending on agriculture live society. Regard for the sanctity of on natural resources, including in rural areas within or near protected life also means that human-wildlife non-timber forest products (Ministry areas (Figure 2). Of critical importance conflict, particularly crop-raiding by of Agriculture and Forests 2016). More here is a government decision in 2004 wild boar, although recognized as a than half the population live inside or to legalize collection of Cordyceps fungi, serious problem is not particularly near protected areas: the small number which is highly valuable as a medicine blamed on conservation. of people means that there are still large and under national park legislation is “empty” areas within parks; however, confined to park residents collecting How Effective Are Bhutan’s there has never been an attitude that under a highly controlled system. In Protected Areas? assumes setting up a protected area this manner, the protected area system There have been several attempts to means expelling the inhabitants. There ensures sustainable management of assess the effectiveness of Bhutan’s is also low visitor pressure, although a valuable non-timber forest product protected area system, starting with this is slowly growing. Visitor numbers (NTFP) and keeps the monetary application of the Rapid Assessment are controlled through the national rewards within local communities. and Prioritization of Protected Area policy (Bhutan 2020) of low-volume, Until recently, poaching pressure Management methodology in 2003 high-value tourism. Most tourists focus had also remained low, allowing the (Tshering 2003). In 2015 and 2016, on cultural or religious sites, and large survival of iconic species such as the the Department of Forest and Park parts of the protected areas system are tiger and snow leopard, which have Services carried out an assessment of effectively left alone with the exception suffered heavy losses in similar habitats all 11 protected areas, using a modified of the famous Snow Man Trek, which elsewhere in the region. form of the WWF Management is attempted by many and considered Bhutan is also a deeply religious Effectiveness Tracking Tool developed to be the most arduous trekking route society, and Buddhist philosophy helps during workshops in Punakha and in the country. to shape attitudes toward other species Lamperi. Lamperi meeting participants Protected area managers work and sets the philosophical foundations representing all the country’s protected closely with park residents through for conservation (Higgins-Zogib et al. areas collectively developed, refined, a decentralization process that was 2011). Several of the highest peaks and agreed upon the best methodology introduced by the Fourth King Jigme are off limits for climbers due to their in the Bhutan context – the Bhutan Singye Wangchuck in 1974, which is sacred values, so the concept of setting METT Plus 2016 (Dudley et al. 2016) 44 International Journal of Wilderness JUNE 2017 • VolUmE 23, NUmbEr 1 Figure 3 – Local People, Jigme Singye Wangchuck National Park Figure 4 – Royal Manas National Park Umling range office – and then carried out the assessment. SMART anti-poaching information but this may well change. Results were verified in many of the system and human wildlife conflict protected areas through sites visits management. Although budgets What Does Bhutan Tell Us and interviews with local community are believed to be stable, the level of about Attainment of the Nature representatives. resources is insufficient for effective Needs Half Proposals? The overall results show that management given the size of the Skeptics tend to dismiss Bhutan as protected areas in Bhutan are well network and the challenges of working a special case: a largely uninhabited, managed. However, effectiveness is in such difficult physical conditions. uninhabitable, and underpopulated currently limited by a low level of Most regular activities (e.g., patrolling, country with a unique set of social resources (both financial and technical) Cordyceps management, budgeting, and cultural conditions that allow and by gaps in the monitoring and and community engagement) are the government to designate a huge research data, which limits the ability implemented, but it is not clear that protected area system. And there is to undertake adaptive management managers and staff will be able to cope justification for caution. It is hard to in response to changing pressures with the likely increased demands on imagine either of Bhutan’s massive (DoFPS 2016). management in the future. While it is neighbors (India and China) finding The network of protected believed that management is producing space to set aside half their countries, areas is extensive and representative good conservation results, outcome for instance. But neither is it enough to (Figure 1), and there is generally a data are limited. Survey work for tiger write Bhutan off as irrelevant to wider good understanding about conser- and snow leopard suggest protection discussions about protected areas. vation. All protected areas are legally is effective, but most species are not Five critical factors can be identified designated and have management systematically monitored (Ministry of that contribute significantly to success objectives. Threats are understood Agriculture and Forests 2016). indicators and are all transferable to and stakeholder relationships well In short, management is generally any other country. developed. Most protected areas have good, although often underresourced. First, and perhaps most important, management plans, although two A planned major funding initiative, Bhutanese protected areas are established parks that have only recently been put Bhutan for Life, is expected to address in collaboration with rather than in into operation